PO Box 11351 Olympia, WA 98508 July 27, 2010 Governor Christine O. Gregoire Governor Theodore R. Kulongoski Office of the Governor 160 State Capitol PO Box 40002 900 Court Street Olympia, WA 98504-0002 Salem, Oregon 97301-4047 Columbia River Crossing Independent Review Panel Final Report Dear Governors Gregoire and Kulongoski: In accordance with your charge to the Independent Review Panel (IRP) the final report documenting our findings and recommendations is transmitted for your consideration. The IRP has examined a large volume of information, heard from project owners, project sponsors, key stakeholders and the public and conducted independent research. The IRP is unanimous in assessing that the Columbia River Crossing Project (CRC) must move forward with a new crossing to be built at the earliest possible date. In addition, the IRP affirms that the CRC has made significant progress in preliminary engineering and environmental studies. This report outlines the IRP findings regarding the work to date and offers recommendations to serve as a “road map” for Oregon and Washington toward project completion. Complying with these recommendations will be the most expeditious path for the CRC and bring substantial long-term benefit to the region. We appreciate the opportunity to assist you and the citizens of your respective states in this important initiative. The IRP would be pleased to provide further clarification on any part of the report as needed. Sincerely, Thomas R. Warne, PE Chair Enclosure I-5 Columbia River Crossing Project Independent Review Panel Final Report July 27, 2010 PO Box 11351 Olympia, WA 98508 Contact: Tom Warne [email protected] 801.302.8300 Submitted by: IRP Final Report July 27, 2010 Page 1 Table of Contents TABLES AND FIGURES ......................................................................................................................... 4 TERMINOLOGY ................................................................................................................................... 5 1 EXECUTIVE SUMMARY .................................................................................................................... 9 Findings ....................................................................................................................................................... 11 Recommendations ..................................................................................................................................... 17 2 INTRODUCTION ............................................................................................................................. 22 2.1 Project Description .............................................................................................................................. 22 2.2 Independent Review Panel Formation ............................................................................................. 25 2.3 Independent Review Panel Charge ................................................................................................... 27 2.4 Process followed by the Independent Review Panel ....................................................................... 28 2.5 IRP Recommendations ...................................................................................................................... 31 3 IMPLEMENTATION ....................................................................................................................... 32 3.1 Context Sensitive Solutions ................................................................................................................ 32 3.1.1 Recommendation ................................................................................................................... 34 3.2 Project Planning, Environmental Review and Coordination ............................................................. 34 3.2.1 NEPA Process and Documentation ........................................................................................ 35 3.2.2 Federal Agency Coordination and Permitting ........................................................................ 55 3.2.3 Stakeholder Outreach / Public Involvement .......................................................................... 77 3.2.4 Tribal Consultation ................................................................................................................. 102 3.3 Roadway Design ................................................................................................................................. 105 3.3.1 Overall Corridor Approach and Sizing ................................................................................... 105 3.3.2 Roadway Alignment Design .................................................................................................. 110 3.3.3 Roadway Design: Bridge ....................................................................................................... 121 3.4 Light Rail Transit ................................................................................................................................ 143 3.5 Construction ....................................................................................................................................... 147 3.5.1 Constructability ...................................................................................................................... 147 IRP Final Report July 27, 2010 Page 2 3.5.2 Schedule ................................................................................................................................. 149 3.6 Project Management, Decision Making and Governance .............................................................. 149 3.6.1 Project Delivery Phase ........................................................................................................... 150 3.6.2 Long-Term Project Management .......................................................................................... 154 3.6.3 Environmental Stewardship, Management and Consultation ............................................ 156 3.6.4 Schedule ................................................................................................................................. 159 3.6.5 Project Cost Estimate ............................................................................................................. 161 3.6.6 Risk Management .................................................................................................................. 164 4 FINANCE ....................................................................................................................................... 170 4.1 Project Finance Overview .................................................................................................................. 170 4.2 Finance Plan ....................................................................................................................................... 171 4.3 Tolling ................................................................................................................................................. 176 4.4 Cost Benefit Analysis ......................................................................................................................... 177 4.5 New Starts Funding Assumptions ..................................................................................................... 180 4.6 Phasing Considerations ..................................................................................................................... 184 5. PERFORMANCE MEASURES ........................................................................................................ 188 5.1 Environmental Performance Measures ........................................................................................... 189 5.2 Freight Performance Measures ........................................................................................................ 189 5.3 Congestion Performance Measures ................................................................................................. 190 CONCLUSION .................................................................................................................................. 193 Recommendations ................................................................................................................................... 198 IRP Final Report July 27, 2010 Page 3 Tables and Figures Table 1 - Terminology ..................................................................................................................... 5 Table 2 – IRP Findings ................................................................................................................... 11 Table 3 - IRP Members ................................................................................................................. 26 Table 4 – IRP Public Meetings ....................................................................................................... 29 Table 5 – Acknowledgement of Additional Actions Needed Post-LPA ......................................... 43 Table 6 – Cost Estimates for Alternatives ................................................................................... 163 Table 7 – National Sample of Similar Projects Using a Phased Approach .................................. 185 Figure 1 – CRC Decision-Making Model ...................................................................................... 152 Figure 2 – Expenditure Plan .......................................................................................................